Imagine if all countries were obliged to repay their debts fully, with interest. In such a world, a government bond from any country would be as predictable and uniform in value as gold bullion, regardless of the issuing nation. Contrastingly, if countries could default on debts without severe repercussions, lenders would limit extending credit only to nations with unblemished repayment histories.
However, in the real world, sovereign debt is far from this straightforward. Most countries, at some point, have defaulted on their international loans, leading to intricate negotiations and partial repayments. In the last five decades there has been close to 200 debt restructurings, which were settled by governments paying back 75% of what they owed on average. Argentina's debt restructuring stands out not only for its size and complexity, but also because it put on collision course a government determined not to pay back more than 30% with a group of creditor with no intention to settle unless paid in full.
Greg Makoff's skillfully crafted book provides an in-depth exploration of the intense legal battle that unfolded. The narrative, primarily chronological, adeptly navigates through courtroom dramas and negotiation scenes. Makoff enriches the story with comprehensive background on the pivotal figures and events that influenced the final outcome.
A significant insight from this book is the unpredictability of the creditor-debtor conflict's resolution, highlighting that nothing was set in stone. Argentina's premiers and Ministers of Finance, the various creditors, judge Griesa and other judges overseeing similar cases and those on appeal courts, IMF’s leadership and board all came with different dispositions and greatly shaped subsequent events. I noted a number of key factors that determined the outcome in Argentina, but also at play elsewhere in all restructurings.
- Holdout creditors - Large banks, which dominated private lending to developing countries for decades, prefer a quick settlement rather than prolonged legal battles. But Argentina’s bonds also attracted some small investors and sophisticated hedge funds who weren’t interested in a quick settlement. Some funds, often labelled 'vulture funds,' bought defaulted bonds at steep discounts geared up for a prolonged fight. Such behavior took everyone by surprise.
- The contract text - People who buy and sell government debt don’t seem to read or care about the underlying contract. Argentina’s contracts had some blatant shortcomings, which no one seemed to mind for years. To Argentina’s bad luck, Elliott Management, the most notorious holdout creditor, was quite novel in its approach in looking for contractual weaknesses in deciding where to buy up distressed debt. Argentina’s main problem were the contractual weaknesses in combating holdout behavior, but the problems often go far beyond such provisions. A subset of the debt was in the form of Floating Rate Accrual Note (FRANs), which savvy creditors quickly realized may be owed especially high interest rates in default scenarios.
- The legal strategy pursued - Argentina's legal strategy, involving the Lock Law and the RUFO clause, was a high-stakes gamble, aiming to make repayment to these 'vulture funds' both financially burdensome and politically unpalatable. The government’s strategy of tying their own hands may have worked initially in pushing many holdouts into capitulating and accepting the government’s (25%) offer, but ultimately cost them dearly as the legality of these clauses played out in the court.
- The judge - As the book recounts, Judge Griesa initially leaned towards Argentina's predicament, but as the case progressed, he increasingly perceived the Argentine government as the more obstinate party. His evolving emotions leading up to the consequential rulings, underscores how a single judge can critically impact a nation's economic destiny.
- The jurisdiction - The legal battle, primarily in Manhattan's Federal District Court under New York law, highlighted the strategic importance of jurisdiction. The court's ability to leverage U.S. financial influence in seizing assets or blocking payments underscored the complex interplay between legal authority and economic power. It also begs the question if New York’s primacy may ever be challenged if battles are found to be drawn out and unpredictable.
- The IMF staff assessment - The IMF's role in sovereign debt crises typically involves assessing a borrower's capacity for repayment. In Argentina's case, however, the IMF took a backseat. This helped the government put forward demands for more lenient terms, but these were viewed more skeptically. This situation underscores the importance, yet complexity, of third-party assessments in debt negotiations.
- The debtor’s politics - Never has a modern debt restructuring been dragged out for so long. The contrasting approaches of Argentina's administrations, from the Peronist government's combative stance to the succeeding right-wing government's expedient settlement, demonstrate the profound impact of political shifts on international debt negotiations.
- International politics - The involvement of various countries in a dispute of such magnitude is expected. Notably, the advocacy of IMF's Executive Directors from Italy and Japan, ostensibly supporting more austerity for Argentina, seemingly reflected the interests of small creditors in their home countries. This highlights how debtor nations need to be aware of the global distribution of their creditors, as international politics can play a significant role in debt resolutions.
- Only time will tell (aka state-contingent debt instruments) –The borrowers who accepted Argentina’s initial payout of 25 cents on the dollar were also provided with GDP warrants. These unusual instruments were deemed valueless initially. But they offered creditors the prospect of additional compensation should Argentina's economy experience robust growth. Surprisingly, Argentina's economy did recover more swiftly than anticipated, and has paid out another 18 cents on the dollar over time. With ten more years until the warrants mature and a court battle ongoing on contested GDP growth calculations, there may be even more payment down the line. What initially appeared as a big loss (haircut) to creditors turned out to be a lot more modest for those who waited it out.
Today numerous nations, especially in Africa, struggle with external debt repayment again exacerbated by recent shocks and vast sums needed to combat climate change. While some issues, like dealing with holdout bondholders, have become more manageable, new challenges have arisen, notably increased tensions between creditor governments. This begs the question: can debtor nations hope debt renegotiations will resolve their financial difficulties? The uncertain path highlights the importance of learning from past mistakes.